Freedom of Association and Protection of the Right to Organise Convention, 1948 (No. 87) - Sierra Leone (Ratification: 1961)

Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

The Committee takes note of the adoption of the Employment Act, 2023 (Act No. 15 of 2023) and the Industrial Relations and Trade Union Act, 2024 (Act No.6 of 2024) (IRTU Act). It requests the Government to provide a copy of the IRTU Act.

Article 2 of the Convention. Right of workers and employers without distinction whatsoever to establish and join organizations. In its previous comment, the Committee observed that pursuant to its draft section 3, the Employment Bill, if adopted, would not apply to the armed forces, police forces, fire forces, and correctional services, excluding their civilian workers. The Committee requested the Government to ensure that fire forces and correctional services personnel enjoyed the rights under the Convention. The Committee notes with regret that the Employment Act, in section 3, clearly excludes from its scope, members of the fire forces and correctional services, excluding their civilian workers, and that the IRTU Act in section 2(1) seems to exclude from its scope all members of the correctional service. The Committee notes the Government’s indication that section 26 of the Constitution of Sierra Leone, 1991, restricts the rights of some categories of workers who are public servants from exercising their rights under the Convention, and that any review of the legislations to afford these workers freedom of association rights would first require Constitutional review, which is under way. The Committee once again recalls that the functions exercised by firefighters and prison service personnel do not justify their exclusion from the rights and guarantees set out in the Convention. The Committee requests the Government to take necessary measures, including through the amendment of the two newly adopted laws, to ensure that the above-mentioned categories of workers are granted their rights under the Convention, and to provide information on developments in this regard.

The Committee had previously requested the Government to review the IRTU Bill and the Employment Bill to extend the scope of their application to all workers, regardless of their contractual situation. The Committee notes with regret that both the IRTU Act and the Employment Act, in section 1, circumscribe the definition of “worker” to a person who has a contractual relationship with the employer. The Committee further notes the Government’s indication that, while a review of the relevant provisions is being considered, the Constitutional review takes precedence. The Committee considers that the current terminology is restrictive and incompatible with Article 2 of the Convention. It once again recalls that all workers should have the right to establish and join organizations of their own choosing and that the criterion for determining the persons covered by that right, therefore, is not based on the existence of a contractual employment relationship, which is often non-existent, for example in the case of self-employed workers in general, workers in the informal sector or those who practice liberal professions, who should nevertheless enjoy the right to organize. The Committee therefore requests the Government to review the above-mentioned pieces of legislation so as to extend the scope of its application to all workers, regardless of their contractual situation.

Right of workers and employers’ organizations to establish organizations of their own choosing. The Committee previously noted that section 44 of the IRTU Bill allowed the Registrar to refuse the registration of a trade union or an employers’ organization if there is another union or employers’ organization already registered that adequately represents the interests of those on behalf of whom the organization seeks registration and additionally allows the existing organization to object to the registration of a new one. It requested the Government to review the IRTU Bill so as to allow the registration of more than one trade union or employers’ organization. The Committee notes the Government’s indication that the provision in the newly adopted IRTU Act remains the same, and that while its review will be considered in time, regulations accompanying the act will meanwhile be adopted to give effect to the Committee’s previous request. The Committee considers that the right of workers and employers to establish organizations of their own choosing, as set out in Article 2 of the Convention, implies that diversity of trade union and employers’ organizations must remain possible in all cases. The Committee therefore requests the Government to take necessary measures to amend the legislation so as to allow for the registration of more than one trade union or employers’ organization.

Recognition of the most representative trade union or employers’ organization. The Committee requested the Government to delete from the IRTU Bill the explicit designation of the Sierra Leone Labour Congress (Congress) and the Sierra Leone Employers’ Federation (Federation) as the most representative organizations. The Committee notes with regret the Government’s indication that the same designation has been retained in the IRTU Act. The Government indicates that the Congress and Federation are expressly named in the Constitution as the recognized bodies representing workers and employers respectively and that it will consider making recommendations to the Constitutional Review Committee to give effect to the Committee’s request. The Committee considers that while the Convention is compatible with the system of the most representative organization, the most representative organizations should not be explicitly named in the legislation so as to allow all organizations to claim representative status, based on objective, pre-established and precise criteria. The Committee once again requests the Government to take the necessary steps to delete the designation of a specific union and employers’ organization from the legislation, and to provide information on all developments in this regard.

Article 5. Right of organizations to establish and join federations and confederations and to affiliate with international organizations of workers and employers. The Committee previously noted that the IRTU Bill restricted the right of trade unions and employers’ organizations to join federations and confederations, and that the Employment Bill limited this right to the participation of individual employers and workers in the formation of a federation. Further noting that neither bill granted organizations the right to establish and join federations and confederations or to affiliate with international organizations of workers and employers, the Committee requested the Government to amend the two Bills prior to their adoption to give full effect to Article 5 of the Convention. The Committee notes with regret the Government’s indication that there have been no steps taken to this effect and that the provisions in the adopted legislations remain the same as those in the Bills. The Government adds that any amendment would be possible only post the review of the Constitution. The Committee requests the Government to take the necessary measures to amend the legislation so as to include clear provisions setting out the rights under Article 5 of the Convention.

While noting the Government’s indications that a constitutional review, which is under way, would need to precede any revision of the above-mentioned legislation, the Committee urges the Government to make every effort in consultation with the social partners, to ensure that theEmployment Act, 2023 and the Industrial Relations and Trade Union Act, 2024 are brought into full conformity with the Convention without further delay. The Committee recalls that the Government may avail itself of the technical assistance of the Office in this regard.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee takes notes of the Industrial Relations and Trade Union Bill, 2022 (IRTU Bill) and the Employment Bill, 2022 and of the Government’s indication that both Bills were discussed at the national consultative meeting with the social partners with a view to strengthening the freedom of association for all categories of workers.

Article 2 of the Convention. Right of workers and employers without distinction whatsoever to establish and join organizations. The Committee had previously requested the Government to amend the Regulations of Wages and Industrial Relations Act in order to recognize the right to establish and join unions to all workers, including public officers and persons above the level of supervisor or manager. The Committee welcomes the Government’s indication that the Employment Bill, 2022, ensures that there is no restriction on workers and employers, including those above the level of supervisor or manager, to form or belong to any trade union or employers’ organization of their choice. The Committee observes, however, that pursuant to its draft section 3, the Employment Bill does not apply to the armed forces, police forces, fire forces, and correctional services, excluding their civilian workers. The Committee recalls that the functions exercised by firefighters and prison service personnel do not justify their exclusion from the rights and guarantees set out in the Convention. The Committee requests the Government to indicate the legislative provisions which guarantee the rights under the Convention to firefighters and correctional service personnel. Alternatively, the Committee requests the Government to review the Employment Bill in order to ensure that the above-mentioned categories of workers are granted the right to organize, and to provide information on developments in this regard.

The Committee observes that both the IRTU Bill and the Employment Bill circumscribe the definition of “worker” to a person who has a contractual relationship with the employer. The Committee considers that this terminology is restrictive and incompatible with Article 2 of the Convention. The Committee recalls that all workers should have the right to establish and join organizations of their own choosing and that the criterion for determining the persons covered by that right, therefore, is not based on the existence of a contractual employment relationship, which is often non-existent, for example in the case of self-employed workers in general, workers in the informal sector or those who practice liberal professions, who should nevertheless enjoy the right to organize. The Committee therefore requests the Government to review the above-mentioned legislation so as to extend the scope of its application to all workers, regardless of their contractual situation.

Right of workers and employers’ organizations to establish organizations of their own choosing. The Committee observes that the IRTU Bill allows the Registrar to refuse the registration of a trade union or an employers’ organization if there is another union or employers’ organization already registered that adequately represents the interests of those on behalf of whom the organization seeks registration, and additionally allows the existing organization to object to the registration of a new one (section 44). The Committee considers that the right of workers and employers to establish organizations of their own choosing, as set out in Article 2 of the Convention, implies that diversity of trade union and employers’ organizations must remain possible in all cases. The Committee considers that it is important for workers and employers to be able to change organizations or establish new ones for reasons of independence, effectiveness, or ideological choice. Consequently, an organizational exclusivity imposed directly or indirectly by law is contrary to the Convention. The Committee therefore requests the Government to review the IRTU Bill so as to allow for the registration of more than one trade union or employers’ organization.

Recognition of the most representative trade union or employers’ organization. The Committee observes that draft section 1 of the IRTU Bill specifically refers to the Sierra Leone Labour Congress as the most representative organization of workers (Congress), and to the Sierra Leone Employers’ Federation as the most representative organization of employers (Federation). The Committee considers that while the Convention is compatible with the system of the most representative organization, the most representative organizations should not be explicitly named in the legislation so as to allow all organizations to claim representative status, based on objective, pre-established and precise criteria. The Committee requests the Government to delete the designation of a specific union and employers’ organization from the legislation.

Article 5. Right of organizations to establish and join federations and confederations and to affiliate with international organizations of workers and employers. The Committee observes that the IRTU Bill does not provide for the right of trade unions and employers’ organizations to join federations and confederations, and that the Employment Bill appears to limit this right to the participation of individual employers and workers in the formation of a federation. There is no explicit reference in either bills to the right of organizations to establish and join federations and confederations and to affiliate with international organizations of workers and employers. In view of the above, the Committee requests the Government to amend the draft legislation to include clear provisions setting out these rights.

The Committee urges the Government to make every effort to ensure that the above-mentioned draft laws are brought into full conformity with the Convention and adopted without further delay, and to provide copies thereof once they are adopted. The Committee further recalls that the Government may avail itself of the technical assistance of the Office.

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

The Committee welcomes having received the Government’s report, but it observes that it does not reply to its previous comment. The Committee expects that the next report will include the Government’s comments in relation to the observations of the International Trade Union Confederation (ITUC), of 30 August 2013, concerning serious allegations of violations of the Convention.

Article 2 of the Convention. Right of workers and employers without distinction whatsoever to establish and join organizations. The Committee notes the Government’s indication that, as a consequence of the scope (section 1) and definition of “worker” (section 2) of the Regulations of Wages and Industrial Relations Act, public officers and persons above the level of supervisor or manager cannot join or form trade unions. The Committee must recall that under the Convention: (i) the right to establish and join occupational organizations should be guaranteed for all public servants and officials (with the sole possible exception of the police and the armed forces); and (ii) while it is possible to deny managerial and executive staff the right to join the same trade unions as other workers, managers and supervisors must be guaranteed the right to join or establish their own organizations to defend their interests. The Committee requests the Government to amend the Regulations of Wages and Industrial Relations Act in order to recognize the right to establish and join unions to all workers, including public officers and persons above the level of supervisor or manager.

Recalling that for many years it has been awaiting the review of the labour laws, including on matters of freedom of association, the Committee requests the Government to provide further information on developments in law and practice, and encourages the Government, in consultation with the social partners, to ensure full compliance with the Convention. The Committee further recalls that the Government may avail itself of the technical assistance of the Office.

Direct Request (CEACR) - adopted 2018, published 108th ILC session (2019)

The Committee notes with concern that the Government’s report has not been received. It expects that the next report will contain full information on the matters raised in its previous comments initially made in 2013.

Repetition

The Committee notes the comments submitted by the International Trade Union Confederation (ITUC), dated 30 August 2013, concerning serious allegations of violations of the Convention, and requests the Government to provide its observations thereon.

Direct Request (CEACR) - adopted 2017, published 107th ILC session (2018)

The Committee notes with concern that the Government’s report has not been received. It expects that the next report will contain full information on the matters raised in its previous comments initially made in 2013. The Committee also notes that the Government had been requested to provide information to the Committee on the Application of Standards at the 106th Session of the International Labour Conference for failure to supply reports and information on the application of ratified Conventions.

Repetition

The Committee notes the comments submitted by the International Trade Union Confederation (ITUC), dated 30 August 2013, concerning serious allegations of violations of the Convention, and requests the Government to provide its observations thereon.

Direct Request (CEACR) - adopted 2016, published 106th ILC session (2017)

The Committee notes the observations of the International Organisation of Employers (IOE), received on 1 September 2016, which are of a general nature.

The Committee notes with regret that the Government’s report contains no reply to its previous comments. It hopes that the next report will contain full information on the matters raised in its previous comments.

The Committee further notes the comments submitted by the International Trade Union Confederation (ITUC), dated 30 August 2013, concerning serious allegations of violations of the Convention, and requests the Government to provide its observations thereon.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

The Committee notes the observations of the International Organisation of Employers (IOE) received on 1 September 2015.

The Committee also notes that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

The Committee further notes the comments submitted by the International Trade Union Confederation (ITUC) dated 30 August 2013, concerning serious allegations of violations of the Convention, and requests the Government to provide its observations thereon.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

The Committee notes the Government’s report. The Committee further notes the comments submitted by the International Trade Union Confederation (ITUC) dated 30 August 2013, concerning serious allegations of violations of the Convention, and requests the Government to provide its observations thereon.

Direct Request (CEACR) - adopted 2012, published 102nd ILC session (2013)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

Repetition

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts concerning freedom of association adopted since 1992.

Direct Request (CEACR) - adopted 2011, published 101st ILC session (2012)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

Repetition

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts concerning freedom of association adopted since 1992.

Direct Request (CEACR) - adopted 2010, published 100th ILC session (2011)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts concerning freedom of association adopted since 1992.

Direct Request (CEACR) - adopted 2009, published 99th ILC session (2010)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts concerning freedom of association adopted since 1992.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts adopted since 1992.

Direct Request (CEACR) - adopted 2007, published 97th ILC session (2008)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts adopted since 1992.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee noted that, since 1992 when a draft Industrial Relations Act was under discussion, the Government only provided a report in 2004. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts adopted since 1992.

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

The Committee notes the Government’s report, according to which there is nothing new to report on the Convention.

The Committee observes however that this is the first report received since 1992 when a draft Industrial Relations Act was under discussion, with the ILO’s assistance. The Committee therefore requests the Government to furnish a detailed report on the application of the Convention, accompanied by copies of any legal texts adopted since 1992, for examination in 2006 when the next Government’s report is due.